8/9/2019 VA St Bd Phar v. VA Cit Con Coun. Inc. 425 U.S. 748, 96 S.ct. 1817
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8/9/2019 VA St Bd Phar v. VA Cit Con Coun. Inc. 425 U.S. 748, 96 S.ct. 1817
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Supreme Court of the United StatesVIRGINIA STATE BOARD OF PHARMACY et
al., Appellants,
v.
VIRGINIA CITIZENS CONSUMER COUNCIL,
INC., et al.
No. 74-895.
Argued Nov. 11, 1975.
Decided May 24, 1976.
Consumers of prescription drugs brought suit
against the Virginia State Board of Pharmacy andits individual members, challenging the validity of
a Virginia statute declaring it unprofessional con-
duct for a licensed pharmacist to advertise the
prices of prescription drugs. A Three-Judge panel
of the United States District Court for the Eastern
District of Virginia, 373 F.Supp. 683, declared the
statute void and enjoined its enforcement. Board
appealed. The Supreme Court, Mr. Justice Black-
mun, held that the consumers had standing to assert
the First Amendment protection enjoyed by advert-
isers; that commercial speech was not wholly
outside the protection of the First and Fourteenth
Amendments; and that the statutory bans on advert-
ising prescription drug prices violated the First and
Fourteenth Amendments and could not be justified
on the basis of the state's interest in maintaining the
professionalism of its licensed pharmacists.
Affirmed.
Mr. Chief Justice Burger filed a concurring opinion.
Mr. Justice Stewart filed a concurring opinion.
Mr. Justice Rehnquist filed a dissenting opinion.
West Headnotes
[1] Constitutional Law 92 3851
92 Constitutional Law
92XXVII Due Process
92XXVII(A) In General
92k3848 Relationship to Other Constitu-
tional Provisions; Incorporation
92k3851 k. First Amendment. Most
Cited Cases
(Formerly 92k254.2, 92k274.1(1))
First Amendment is applicable to states through due
process clause of Fourteenth Amendment.
U.S.C.A.Const. Amends. 1, 14.
[2] Constitutional Law 92 855
92 Constitutional Law
92VI Enforcement of Constitutional Provisions
92VI(A) Persons Entitled to Raise Constitu-
tional Questions; Standing
92VI(A)9 Freedom of Speech, Expres-
sion, and Press
92k855 k. In General. Most Cited
Cases
(Formerly 92k42.3(1))
Any First Amendment protection enjoyed by ad-
vertiser seeking to disseminate prescription drug
price information was also enjoyed and could be as-serted by consumers of prescription drugs.
U.S.C.A.Const. Amend. 1.
[3] Constitutional Law 92 1490
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)1 In General
92k1490 k. In General. Most Cited
Cases(Formerly 92k90(1))
Constitutional Law 92 1502
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
96 S.Ct. 1817 Page 1
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
2010 Thomson Reuters. No Claim to Orig. US Gov. Works.
http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=345&FindType=Y&SerialNum=1974105448http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XXVIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XXVII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XXVII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k3848http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k3851http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k3851http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k3851http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDXIV&FindType=Lhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92VIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92VI%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92VI%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92VI%28A%299http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k855http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k855http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k855http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%291http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1490http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1490http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1490http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1490http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1490http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1490http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%291http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k855http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k855http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k855http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92VI%28A%299http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92VI%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92VIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDXIV&FindType=Lhttp://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k3851http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k3851http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k3851http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k3848http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XXVII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XXVIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=345&FindType=Y&SerialNum=19741054488/9/2019 VA St Bd Phar v. VA Cit Con Coun. Inc. 425 U.S. 748, 96 S.ct. 1817
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92XVIII(A) In General
92XVIII(A)1 In General
92k1502 k. Receipt of Information or
Ideas; Listeners' Rights. Most Cited Cases
(Formerly 92k90(1))
Freedom of speech presupposes willing speaker,
but where speaker exists, protection afforded is to
communication, both to its source and to its recipi-
ents. U.S.C.A.Const. Amend. 1.
[4] Constitutional Law 92 1502
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)1 In General
92k1502 k. Receipt of Information or
Ideas; Listeners' Rights. Most Cited Cases
(Formerly 92k90(3))
Freedom of speech may not be abridged on ground
that speaker's listeners could come by his message
by some other means, such as by seeking him out
and asking him what it is, nor is there any such lim-
itation on independent right of listener to receive
information sought to be communicated.
U.S.C.A.Const. Amend. 1.
[5] Constitutional Law 92 1640
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(E) Advertising and Signs
92XVIII(E)2 Advertising
92k1640 k. In General. Most Cited
Cases
(Formerly 92k90.3, 92k90.1(1))
Speech does not lose its First Amendment protec-
tion because money is spent to protect it, as in paidadvertisement of one form or another.
U.S.C.A.Const. Amend. 1.
[6] Constitutional Law 92 1535
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)2 Commercial Speech in Gen-
eral
92k1535 k. In General. Most Cited
Cases
(Formerly 92k90.2, 92k90.1(1))
Speech is protected even though it is carried in
form that is sold for profit. U.S.C.A.Const. Amend.
1.
[7] Constitutional Law 92 1535
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)2 Commercial Speech in Gen-
eral
92k1535 k. In General. Most Cited
Cases
(Formerly 92k90.2, 92k90.1(1))
Speech is protected even though it may involve so-
licitation to purchase or otherwise pay or contribute
money. U.S.C.A.Const. Amend. 1.
[8] Constitutional Law 92 1555
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)3 Particular Issues and Ap-
plications in General
92k1555 k. Matters of Public Concern.
Most Cited Cases
(Formerly 92k90(1))
Purely factual matter of public interest may claim
First Amendment protection. U.S.C.A.Const.Amend. 1.
[9] Constitutional Law 92 1535
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
96 S.Ct. 1817 Page 2
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
2010 Thomson Reuters. No Claim to Orig. US Gov. Works.
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VA St Bd Phar v. VA Cit Con Coun. Inc. 425 U.S. 748, 96 S.ct. 1817
4/28
Press
92XVIII(A) In General
92XVIII(A)2 Commercial Speech in Gen-
eral
92k1535 k. In General. Most Cited
Cases
(Formerly 92k90.2, 92k90.1(1))
Constitutional Law 92 4034
92 Constitutional Law
92XXVII Due Process
92XXVII(G) Particular Issues and Applica-
tions
92XXVII(G)1 In General
92k4034 k. Speech, Press, Assembly,
and Petition. Most Cited Cases
(Formerly 92k274.1(2.1), 92k274.1(2))
Commercial speech is not wholly outside protec-
tion of First and Fourteenth Amendments.
U.S.C.A.Const. Amends. 1, 14.
[10] Constitutional Law 92 1640
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(E) Advertising and Signs
92XVIII(E)2 Advertising
92k1640 k. In General. Most Cited
Cases
(Formerly 92k90.3, 92k90.1(1))
Constitutional Law 92 4034
92 Constitutional Law
92XXVII Due Process
92XXVII(G) Particular Issues and Applica-
tions
92XXVII(G)1 In General
92k4034 k. Speech, Press, Assembly,
and Petition. Most Cited Cases
(Formerly 92k274.1(2.1), 92k274.1(2))
That advertiser's interest in commercial advertise-
ment is purely economic does not disqualify him
from protection under First and Fourteenth Amend-
ments, but both individual consumer and society in
general may have strong interests in free flow of
commercial information. U.S.C.A.Const. Amends.
1, 14.
[11] Constitutional Law 92 1911
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(O) Labor and Employment in Gen-
eral
92k1910 Labor Relations
92k1911 k. In General. Most Cited
Cases
(Formerly 92k90.1(7.1), 92k90.1(7))
Constitutional Law 92 1914
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(O) Labor and Employment in Gen-
eral
92k1910 Labor Relations
92k1914 k. Employer Communica-
tions. Most Cited Cases
(Formerly 92k90.1(7.1), 92k90.1(7))
Both employee and employer are protected by First
Amendment when they express themselves on mer-
its of labor dispute in order to influence its out-
come. U.S.C.A.Const. Amend. 1.
[12] Constitutional Law 92 1645
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(E) Advertising and Signs
92XVIII(E)2 Advertising
92k1645 k. Product Advertisements.
Most Cited Cases
(Formerly 92k90.3, 92k90.1(1))
Constitutional Law 92 4330
92 Constitutional Law
96 S.Ct. 1817 Page 3
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
2010 Thomson Reuters. No Claim to Orig. US Gov. Works.
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VA St Bd Phar v. VA Cit Con Coun. Inc. 425 U.S. 748, 96 S.ct. 1817
5/28
92XXVII Due Process
92XXVII(G) Particular Issues and Applica-
tions
92XXVII(G)14 Environment and Health
92k4330 k. Drugs and Medical
Devices. Most Cited Cases
(Formerly 92k296(1), 92k274.1(2))
Health 198H 105
198H Health
198HI Regulation in General
198HI(A) In General
198Hk102 Constitutional and Statutory
Provisions
198Hk105 k. Validity. Most Cited
Cases
(Formerly 138k11 Drugs and Narcotics)
Virginia statute barring advertisement of prescrip-
tion drug prices violated First and Fourteenth
Amendments and could not be justified on basis of
state's interest in maintaining professionalism of its
licensed pharmacists; in that state is free to require
whatever professional standards it wishes of its
pharmacists and may subsidize them or protect
them from competition in other ways, but it may
not do so by keeping public in ignorance of lawful
terms that competing pharmacists are offering.U.S.C.A.Const. Amends. 1, 14; Code Va.1950,
54-524.35(3).
[13] Constitutional Law 92 1537
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)2 Commercial Speech in Gen-
eral
92k1537 k. Difference in ProtectionGiven to Other Speech. Most Cited Cases
(Formerly 92k90.2, 92k90.1(1))
While commercial speech, like other varieties, is
protected by First Amendment, some forms of com-
mercial speech regulation are surely permissible.
U.S.C.A.Const. Amend. 1.
[14] Constitutional Law 92 1600
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(C) Trade or Business
92k1600 k. In General. Most Cited Cases
(Formerly 92k90.2, 92k90.1(1))
Constitutional Law 92 1646
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(E) Advertising and Signs
92XVIII(E)2 Advertising
92k1646 k. Business or Professional
Services. Most Cited Cases
(Formerly 92k90.2, 92k90.1(1))
Health 198H 105
198H Health
198HI Regulation in General
198HI(A) In General
198Hk102 Constitutional and Statutory
Provisions
198Hk105 k. Validity. Most Cited
Cases(Formerly 138k11 Drugs and Narcotics)
Whatever may be bounds of time, place, and man-
ner of restrictions on commercial speech, they were
exceeded by Virginia statute barring dissemination
of prescription drug prices, which sought out
speech of particular content and sought to prevent
its dissemination completely. U.S.C.A.Const.
Amend. 1; Code Va.1950, 54-524.35(3).
[15] Constitutional Law 92 1539
92 Constitutional Law92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)2 Commercial Speech in Gen-
eral
92k1539 k. False, Untruthful, Decept-
96 S.Ct. 1817 Page 4
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
2010 Thomson Reuters. No Claim to Orig. US Gov. Works.
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VA St Bd Phar v. VA Cit Con Coun. Inc. 425 U.S. 748, 96 S.ct. 1817
6/28
ive, or Misleading Speech. Most Cited Cases
(Formerly 92k90.2, 92k90.1(1))
State may regulate commercial speech which is
false, deceptive, misleading, or which proposes il-
legal transactions. U.S.C.A.Const. Amend. 1.
[16] Constitutional Law 92 1502
92 Constitutional Law
92XVIII Freedom of Speech, Expression, and
Press
92XVIII(A) In General
92XVIII(A)1 In General
92k1502 k. Receipt of Information or
Ideas; Listeners' Rights. Most Cited Cases
(Formerly 92k90(3))
State may not suppress dissemination of concededly
truthful information about entirely lawful activity
on basis of fear of that information's effect upon its
disseminators and its recipients. U.S.C.A.Const.
Amend. 1.
**1819 *748 SyllabusFN*
FN* The syllabus constitutes no part of the
opinion of the Court but has been prepared
by the Reporter of Decisions for the con-
venience of the reader. See United States
v. Detroit Timber & Lumber Co., 200 U.S.
321, 337, 26 S.Ct. 282, 287, 50 L.Ed. 499,
505-06.
Appellees, as consumers of prescription drugs,
brought suit against the Virginia State Board of
Pharmacy and its individual members, appellants
herein, challenging the validity under the First and
Fourteenth Amendments of a Virginia statute de-
claring it unprofessional conduct for a licensed
pharmacist to advertise the prices of prescription
drugs. A three-judge District Court declared the
statute void and enjoined appellants from enforcing
it. Held:
1. Any First Amendment protection enjoyed by ad-
vertisers seeking to disseminate prescription drug
price information is also enjoyed, and thus may be
asserted, by appellees as recipients of such informa-
tion. Pp. 1822-1823.
2. Commercial speech is not wholly outside the
protection of the First and Fourteenth Amendments,
and the Virginia statute is therefore invalid. Pp.
1825-1831.
(a) That the advertiser's interest in a commercial
advertisement is purely economic does not disquali-
fy him from protection under the First and Four-
teenth Amendments. Both the individual consumer
and society in general may have strong interests in
the free flow of commercial information. Pp.
1826-1827.
(b) The ban on advertising prescription drug prices
cannot be justified on the basis of the State's in-
terest in maintaining the professionalism of its li-
censed pharmacists; the State is free to require
whatever professional standards it wishes of its
pharmacists, and may subsidize them or protect
them from competition in other ways, but it may
not do so by keeping the public in ignorance of the
lawful terms that competing pharmacists are offer-
ing. Pp. 1828-1830.
(c) Whatever may be the bounds of time, place, and
manner restrictions on commercial speech, they are
plainly exceeded by *749 the Virginia statute,
which singles out speech of a particular content and
seeks to prevent its dissemination completely. P.
10.
(d) No claim is made that the prohibited prescrip-
tion drug advertisements are false, misleading, or
propose illegal transactions, and a State may not
suppress the dissemination of concededly truthful
information about entirely lawful activity, fearful of
that information's effect upon its disseminators and
its recipients. Pp. 1830-1831.
373 F.Supp. 683, affirmed.
Anthony F. Troy, Richmond, Va., for appellants.
Alan B. Morrison, Washington, D. C., for ap-
pellees.
96 S.Ct. 1817 Page 5
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
2010 Thomson Reuters. No Claim to Orig. US Gov. Works.
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7/28
Mr. Justice BLACKMUN delivered the opinion of
the Court.
[1] The plaintiff-appellees in this case attack, as vi-
olative of the First and Fourteenth Amendments,FN1
that portion of s 54-524.35 of Va.Code Ann.
(1974), which provides that a pharmacist licensed
in Virginia is guilty of unprofessional*750 conduct
if he (3) publishes, advertises or promotes, directly
or indirectly, in any manner whatsoever, any
amountprice, fee, premium, discount, rebate or
credit terms . . . for any drugs which may be dis-
pensed only by prescription.FN2
The three-judge
District Court **1820 declared the quoted portion
of the statute void and of no effect, Jurisdictional
Statement, App. 1, and enjoined the defendant-ap-pellants, the Virginia State Board of Pharmacy and
the individual members of that Board, from enfo r-
cing it. 373 F.Supp. 683 (E.D.Va.1974). We noted
probable jurisdiction of the appeal. 420 U.S. 971,
95 S.Ct. 1389, 43 L.Ed.2d 650 (1975).
FN1. The First Amendment is applicable to
the States through the Due Process Clause
of the Fourteenth Amendment. See, E. g.,
Bigelow v. Virginia, 421 U.S. 809, 811, 95
S.Ct. 2222, 2227, 44 L.Ed.2d 600, 605-606
(1975); Schneider v. State, 308 U.S. 147,160, 60 S.Ct. 146, 150, 84 L.Ed. 155, 164
(1939).
FN2. Section 54-524.35 provides in full:
Any pharmacist shall be considered guilty
of unprofessional conduct who (1) is found
guilty of any crime involving grave moral
turpitude, or is guilty of fraud or deceit in
obtaining a certificate of registration; or
(2) issues, publishes, broadcasts by radio,
or otherwise, or distributes or uses in anyway whatsoever advertising matter in
which statements are made about his pro-
fessional service which have a tendency to
deceive or defraud the public, contrary to
the public health and welfare; or (3) pub-
lishes, advertises or promotes, directly or
indirectly, in any manner whatsoever, any
amount, price, fee, premium, discount, re-
bate or credit terms for professional ser-
vices or for drugs containing narcotics or
for any drugs which may be dispensed only
by prescription.
I
Since the challenged restraint is one that peculiarly
concerns the licensed pharmacist in Virginia, we
begin with a description of that profession as it ex-
ists under Virginia law.
The practice of pharmacy is statutorily declared
to be a professional practice affecting the publichealth, safety and welfare, and to be subject to
regulation and control in the public interest.
Va.Code Ann. s 54-524.2(a) (1974).FN3
Indeed,
the practice is subject to extensiveregulation *751
aimed at preserving gh professional standards. The
regulatory body is the appellant Virginia State
Board of Pharmacy. The Board is broadly charged
by statute with various responsibilities, including
the (m)aintenance of the quality, quantity, integ-
rity, safety and efficacy of drugs or devices distrib-
uted, dispensed or administered. s 54-524.16(a). It
also is to concern itself with (m)aintaining the in-
tegrity of, and public confidence in, the profession
and improving the delivery of quality pharmaceut-
ical services to the citizens of Virginia. s
54-524.16(d). The Board is empowered to make
such bylaws, rules and regulations . . . as may be
necessary for the lawful exercise of its powers. s
54-524.17.
FN3. The parties, also, have stipulated that
pharmacy is a profession. Stipulation of
Facts P 11, App. 11.
The Board is also the licensing authority. It may is-
sue a license, necessary for the practice of phar-
macy in the State, only upon evidence that the ap-
plicant is of good moral character, is a graduate
in pharmacy of a school approved by the Board,
96 S.Ct. 1817 Page 6
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
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and has had a suitable period of experience (the
period required not to exceed 12 months) accept-
able to the Board. s 54-524.21. The applicant must
pass the examination prescribed by the Board. Ibid.
One approved school is the School of Pharmacy of
the Medical College of Virginia, where the cur-
riculum is for three years following two years of
college. Prescribed prepharmacy courses, such as
biology and chemistry, are to be taken in college,
and study requirements at the school itself include
courses in organic chemistry, biochemistry, com-
parative anatomy, physiology, and pharmacology.
Students are also trained in the ethics of the profes-
sion, and there is some clinical experience in the
school's hospital pharmacies and in the medical
center operated by the Medical College. This *752is a rigid, demanding curriculum in terms of what
the pharmacy student is expected to know about
drugs.FN4
FN4. Id., P 8, App. 11. See generally Id.,
PP 6-16, App. 10-12.
Once licensed, a pharmacist is subject to a civil
monetary penalty, or to revocation or suspension of
his license, if the Board finds that he is not of
good moral character, or has violated any of a
number of stated professional standards (amongthem that he not be negligent in the practice of
pharmacy or have engaged in fraud or deceit
upon the consumer . . . in connection with the prac-
tice of pharmacy), or is guilty of unprofessional
conduct. s 54-524.22:1. Unprofessional conduct
is specifically **1821 defined in s 54-524.35, n. 2,
Supra, the third numbered phrase of which relates
to advertising of the price for any prescription drug,
and is the subject of this litigation.
Inasmuch as only a licensed pharmacist may dis-
pense prescription drugs in Virginia, s 54-524.48,FN5advertising or other affirmative dissemination
of prescription drug price information is effectively
forbidden in the State. Some pharmacies refuse
even to quote prescription drug prices over the tele-
phone. The Board's position, however, is that this
would not constitute an unprofessional publication.
FN6It is clear, nonetheless, that all advertising of
such prices, in the normal sense, is forbidden. The
prohibition does not extend to nonprescription
drugs, but neither is it confined to prescriptions that
the pharmacist compounds himself. Indeed, about
95% Of all prescriptions now are filled with dosage
forms prepared by the pharmaceutical manufac-
turer.FN7
FN5. Exception is made for legally quali-
fied practitioners of medicine, dentistry,
osteopathy, chiropody, and veterinary
medicine. s 54-524.53.
FN6. Stipulation of Facts P 25, App. 15.
FN7. Id., P 18, App. 13.
*753 II
This is not the first challenge to the constitutional-
ity of s 54-524.35 and what is now its third-
numbered phrase. Shortly after the phrase was ad-
ded to the statute in 1968,FN8
a suit seeking to en-
join its operation was instituted by a drug retailing
company and one of its pharmacists. Although the
First Amendment was invoked, the challenge ap-
pears to have been based primarily on the Due Pro-cess and Equal Protection Clauses of the Fourteenth
Amendment. In any event, the prohibition on drug
price advertising was upheld. Patterson Drug Co. v.
Kingery, 305 F.Supp. 821 (W.D.Va.1969). The
three-judge court did find that the dispensation of
prescription drugs affects the public health, safety
and welfare. Id., at 824-825. No appeal was taken.
FN8. Theretofore an administrative regula-
tion to the same effect had been outstand-
ing. The Board, however, in 1967 was ad-
vised by the State Attorney General's of-fice that the regulation was unauthorized.
The challenged phrase was added to the
statute the following year. See Patterson
Drug Co. v. Kingery, 305 F.Supp. 821, 823
n. 1 (W.D.Va.1969).
96 S.Ct. 1817 Page 7
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
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The present, and second, attack on the statute is one
made not by one directly subject to its prohibition,
that is, a pharmacist, but by prescription drug con-
sumers who claim that they would greatly benefit if
the prohibition were lifted and advertising freely al-
lowed. The plaintiffs are an individual Virginia res-
ident who suffers from diseases that require her to
take prescription drugs on a daily basis,FN9
and
two nonprofit organizations.FN10
Their *754
claim ithat the First Amendment entitles the user of
prescription drugs to receive information that phar-
macists wish to communicate to them through ad-
vertising and other promotional means, concerning
the prices of such drugs.
FN9. Stipulation of Facts P 3, App. 9.
FN10. The organizations are the Virginia
Citizens Consumer Council, Inc., and the
Virginia State AFL-CIO. Each has a sub-
stantial membership (approximately
150,000 and 69,000, respectively) many of
whom are users of prescription drugs. Id.,
PP 1 and 2, App. 9. The American Associ-
ation of Retired Persons and the National
Retired Teachers Association, also claim-
ing many members who depend substan-
tially on prescription drugs for their well-being, Brief 2, are among those who have
filed briefs Amici curiae in support of the
appellees.
Certainly that information may be of value. Drug
prices in Virginia, for both prescription and nonpre-
scription items, strikingly vary from outlet to outlet
even within the same locality. It is stipulated, for
example, that in Richmond the cost of 40 Achro-
mycin tablets ranges from $2.59 to $6.00, a differ-
ence of 140% (Sic ), and that in the Newport
News-Hampton area the cost of tetracycline rangesfrom $1.20 to.$9.00, a difference of 650%.
FN11
FN11. Stipulation of Facts PP 22(b) and
(c), App. 14. The phenomenon of widely
varying drug prices is apparently national
in scope. The American Medical Associ-
ation conducted a survey in Chicago that
showed price differentials in that city of up
to 1200% For the same amounts of a spe-
cific drug. A study undertaken by the Con-
sumers Union in New York found that
prices for the same amount of one drug
ranged from 79 to $7.45, and for another
from $1.25 to $11.50. Id., PP 22(d) and
(e), App. 14. Amici American Association
of Retired Persons and National Retired
Teachers Association state that in 1974
they participated in a survey of three pre-
scription drug prices at 28 pharmacies in
Washington, D.C., and found pharmacy-
to-pharmacy variances in the price of
identical drugs as great as 245%. Brief asAmici Curiae 10. The prevalence of such
discrepancies throughout the United
States is documented in a recent report.
Staff Report to the Federal Trade Commis-
sion, Prescription Drug Price Disclosures
119 (1975). The same report indicates that
34 States impose significant restrictions on
dissemination of drug price information
and, thus make the problem a national one.
Id., at 34.
**1822 The District Court seized on the identity ofthe plaintiff-appellees as consumers as a feature
distinguishing the *755 present case from Patterson
Drug Co. v. Kingery, supra. Because the unsuccess-
ful plaintiffs in that earlier case re pharmacists, the
court said, theirs was a prima facie commercial ap-
proach, 373 F.Supp., at 686. The present plaintiffs,
on the other hand, were asserting an interest in their
own health that was fundamentally deeper than a
trade consideration. Ibid. In the District Court's
view, the expression in Valentine v. Chrestensen,
316 U.S. 52, 54-55, 62 S.Ct. 920, 921, 86 L .Ed.
1262, 1265-66 (1942), to the effect that purely
commercial advertising is not protected had been
tempered, by later decisions of this Court, to the
point that First Amendment interests in the free
flow of price information could be found to out-
weigh the countervailing interests of the State. The
96 S.Ct. 1817 Page 8
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
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strength of the interest in the free flow of drug price
information was borne out, the court felt, by the
fact that three States by court decision had struck
down their prohibitions on drug price advertising.
Florida Board of Pharmacy v. Webb's City, Inc.,
219 So.2d 681 (Fla.1969); Maryland Board of Phar-
macy v. Sav-A-Lot, Inc., 270 Md. 103, 311 A.2d
242 (1973); Pennsylvania State Board of Pharmacy
v. Pastor, 441 Pa. 186, 272 A.2d 487 (1971).FN12
The District Court recognized that this Court had
upheld against federal constitutional challenges
other than on First Amendment grounds state restric
tions*756 on the advertisement of prices for opto-
metrists' services, Head v. New Mexico Board, 374
U.S. 424, 83 S.Ct. 1759, 10 L.Ed.2d 983 (1963), for
eyeglass frames, Williamson v. Lee Optical Co.,348 U.S. 483, 75 S.Ct. 461, 99 L.Ed. 563 (1955),
and for dentists' services, Semler v. Dental Exam-
iners, 294 U.S. 608, 55 S.Ct. 570, 79 L.Ed. 1 086
(1935).FN13
The same dangers of abuse and decep-
tion were not thought to be present, however, when
the advertised commodity was prescribed by a
physician for his individual patient and was dis-
pensed by a licensed pharmacist. The Board failed
to justify the statute adequately, and it had to fall.
373 F.Supp., at 686-687.
FN12. The Florida and Pennsylvania de-cisions appear to rest on state constitution-
al grounds. The Maryland decision was
based on the Due Process Clause of the
Fourteenth Amendment as well as on pro-
visions of the State Constitution.
Accord: Terry v. California State Board of
Pharmacy, 395 F.Supp. 94 (N.D.Cal.1975),
appeal docketed, No. 75-336. Contra:
Urowsky v. Board of Regents, 38 N.Y.2d
364, 379 N.Y.S.2d 815, 342 N.E.2d 583
(1975); Supermarkets General Corp. v.
Sills, 93 N.J.Super. 326, 225 A.2d 728
(1966).
See Note: Commercial Speech An End in
Sight to Chrestensen? 23 De Paul L.Rev.
1258 (1974); Comment, 37 Brooklyn
L.Rev. 617 (1971); Comment, 24 Wash.
and Lee L.Rev. 299 (1967).
FN13. In Head v. New Mexico Board, the
First Amendment issue was raised. This
Court refused to consider it, however, be-
cause it had not been presented to the state
courts, nor reserved in the notice of appeal
here. 374 U.S., at 432 n. 12, 83 S.Ct., at
1764-1765, 10 L.Ed.2d, at 990. The
Court's action to this effect was noted in
Pittsburgh Press Co. v. Human Relations
Comm'n, 413 U.S. 376, 387 n. 10, 93 S.Ct.
2553, 2559-2560, 37 L.Ed.2d 669, 678
(1973). The appellants at the oral argument
recognized that Head was a due processcase. Tr. of Oral Arg. 10.
III
[2] The question first arises whether, even assum-
ing that First Amendment protection**1823 at-
taches to the flow of drug price information, it is a
protection enjoyed by the appellees as recipients of
the information, and not solely, if at all, by the ad-
vertisers themselves who seek to disseminate that
information.
[3][4] Freedom of speech presupposes a willing
speaker. But where a speaker exists, as is the case
here,FN14
the protection afforded is to the commu-
nication, to its source and to its recipients both.
This is clear from the decided cases. In Lamont v.
Postmaster General, 381 U.S. 301, 85 S.Ct. 1493,
14 L.Ed.2d 398 (1965), the Court upheld the First
Amendment rights of citizens to receive political
publications sent from abroad. *757 More re-
cently, in Kleindienst v. Mandel, 408 U.S. 753,
762-763, 92 S.Ct. 2576, 2581, 33 L.Ed.2d 683, 69 1
(1972), we acknowledged that this Court has re-
ferred to a First Amendment right to receive in-
formation and ideas, and that freedom of speech
necessarily protects the right to receive. And in
Procunier v. Martinez, 416 U.S. 396, 408-409, 94
S.Ct. 1800, 1808-1809, 40 L.Ed.2d 224, 237-238
96 S.Ct. 1817 Page 9
425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930
(Cite as: 425 U.S. 748, 96 S.Ct. 1817)
2010 Thomson Reuters. No Claim to Orig. US Gov. Works.
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